It is reductive, but useful to see the text of law and bureaucracy as a virtual reality, and the non-textual (real) world as a generative force. Reality in a bureaucratic world is (almost) the accumulation of records. A person has title to land if the succession of recorded instruments say so. A person has permission to drive or to run a restaurant if the permits were received. Informed consent exists if the person signed an acknowledgement attached to a description of risks.

Documents are the skin of law and bureacracy, the part that contacts people.

Connecting the docs makes it possible to automate the internal workings.